planning report PDU/0279a/01 4 August 2010 Barn Elms Sports Centre, Barnes in the London Borough of Richmond upon Thames planning application no.10/1729/FUL Strategic planning application stage 1 referral (new powers) Town & Country Planning Act 1990 (as amended); Greater London Authority Acts 1999 and 2007; Town & Country Planning (Mayor of London) Order 2008 The proposal Redevelopment of Barn Elms playing fields, including the demolition of the main pavilion and groundman's mess, construction of a new pavilion, new car parking, refurbishment of tennis courts, pitch improvements, and widening of the existing vehicular site entrance. The applicant The applicant is Richmond upon Thames Council, and the architect is A.D. Architects. Strategic issues The replacement sports pavilion is acceptable in terms of Metropolitan Open Land and open space policy. However, further work and discussion is required on accessibility, sustainable development and transport before the application is returned to the Mayor. Recommendation That Richmond upon Thames Council be advised that while the application is generally acceptable in strategic planning terms the application does not comply with the London Plan, for the reasons set out in paragraph 61 of this report; but that the possible remedies set out in paragraph 63 of this report could address these deficiencies. The application does not need to be referred back to the Mayor if Richmond upon Thames Council resolve to refuse permission, but it must be referred back if Richmond upon Thames resolve to grant permission. Context 1 On 7 July 2010 the Mayor of London received documents from Richmond upon Thames Council notifying him of a planning application of potential strategic importance to develop the above site for the above uses. Under the provisions of The Town & Country Planning (Mayor of London) Order 2008 the Mayor has until 17 August 2010 to provide the Council with a statement setting out whether he considers that the application complies with the London Plan, and his reasons for taking that view. The Mayor may also provide other comments. This report sets out information for the Mayor’s use in deciding what decision to make. page 1 2 The application is referable under Category 3C(a) of the Schedule to the Order 2008: ”Development which is likely to prejudice the use as a playing field of more than 2 hectares of land which is used as a playing field at the time the relevant application for planning permission is made” 3 Once Richmond upon Thames Council has resolved to determine the application, it is required to refer it back to the Mayor for his decision, as to whether to direct refusal; or allow the Council to determine it itself, unless otherwise advised. In this instance if Richmond upon Thames Council resolves to refuse permission it need not refer the application back to the Mayor. 4 The Mayor of London’s statement on this case will be made available on the GLA website www.london.gov.uk. Site description 5 The site is located in the north east of the borough, towards the boundary with Wandsworth and Hammersmith and Fulham. The Barn Elms playing fields are on the south side of Queen Elizabeth Walk, immediately east of the A306 Rocks Lane. The site is owned by Richmond upon Thames Council and comprises 18.6 hectares. The site is largely designated as Metropolitan Open Land (MOL) in the Council’s saved UDP proposals map, but an area of 2.2 hectares at the northern site boundary, and extending a third of the way into the site, is excluded from this designation. 6 The site currently accommodates 13 football pitches of various sizes, three cricket squares, two rugby union pitches, nine tennis courts (of which six are disused) and an athletics track. 7 Pedestrian access is obtained at two entry points along Queen Elizabeth Walk at the north of the site and a further two entry points off Rocks Lane towards the south-west corner of the site. Vehicular access is available from the Queen Elizabeth Walk entry points. 8 The site lies approximately 500m from Barnes National Rail station and over 800m to the nearest Underground station Hammersmith, which is served by Piccadilly, District and Hammersmith & City line services. The adjacent A306 Rocks Lane is part of the Strategic Road Network (SRN) and is also approximately 1km from the A205 Upper Richmond Road which makes up part of the Transport for London Road Network (TLRN). The site has a public transport accessibility level (PTAL) of 3, on a scale of 1 to 6, where 6 is most accessible. Details of the proposal 9 The proposal comprises demolition of the existing 200 sq. m single story pavilion, 75 sq. m ‘Portakabin’ toilet block and 30 sq. m groundsman’s mess hut, and its replacement with a single storey sports pavilion of 535 sq. m. The new pavilion is to be positioned to allow for improved configuration of the grass sports pitches. A new access road and footpath are also proposed, along with improved car and cycle parking offering 75 car parking spaces and 30 cycle spaces. 10 Six of the nine existing tennis courts at the site are proposed to be improved and upgraded, while the remaining three would be lost as part of the proposals. Table 1 overleaf provides a comparison of pitch/court provision as existing and as proposed. Case history 11 Various efforts have been made to regenerate the site over the last fifteen years, however, there is no recent strategic case history. page 2 Table 1, comparison of pitch provision between existing and proposed Pitch type Existing provision Proposed provision Mini soccer 6 8 Junior football 2 2 Senior football 5 5 Rugby 2 2 Cricket square 3† 2 Tennis 9‡ 6 †Due to space restrictions only two of these squares can be used to play cricket at any one time. ‡Six of these courts are dilapidated and currently disused. Strategic planning issues and relevant policies and guidance 12 The relevant issues and corresponding policies are as follows: MOL London Plan; PPG2 Open land London Plan; PPG17; draft PPS Planning for a Natural and Healthy Environment Playing fields London Plan; PPG17, draft PPS Planning for a Natural and Healthy Environment Urban design London Plan; PPS1 Access London Plan; PPS1; Accessible London: achieving an inclusive environment SPG; Planning and Access for Disabled People: a good practice guide (ODPM) Sustainable development London Plan; PPS1, PPS1 supplement; PPS3; PPG13; PPS22; draft PPS Planning for a Low Carbon Future in a Changing Climate; the Mayor’s Energy Strategy; Mayor’s draft Climate Change Mitigation and Adaptation Strategies; Mayor’s draft Water Strategy; Sustainable Design and Construction SPG Flooding London Plan; Mayor’s draft Water Strategy; PPS25, RPG3B Transport and parking London Plan; the Mayor’s Transport Strategy; PPG13 13 For the purposes of Section 38(6) of the Planning and Compulsory Purchase Act 2004, the development plan in force for the area is the 2009 Richmond upon Thames Core Strategy, saved policies of the 2005 Richmond upon Thames Unitary Development Plan and the London Plan (Consolidated with Alterations since 2004). 14 The following are also relevant material considerations: The draft replacement London Plan, published in October 2009 for consultation. The Richmond upon Thames Development Management Development Plan Document (Pre-Submission Stage) page 3 Principle of development MOL and open space 15 The application site is located predominantly on land designated as Metropolitan Open Land (MOL) and Public Open Space in Richmond Council’s saved UDP proposals map. Chapter 3 of the London Plan is concerned with, amongst other things, open space, and Policy 3D.8 states that “The Mayor will work with strategic partners to protect and promote London’s network of open spaces, to realise the current and potential value of open space to communities and to protect the many benefits of open space...”. In addition, and with regard to the MOL designation, Policy 3D.10 states: “The Mayor will and boroughs should maintain the protection of Metropolitan Open Land from inappropriate development.” 16 The reference to “inappropriate development” flows directly from PPG2, which sets out the Government’s policy towards Green Belts, but which equally, applies to the protection of MOL. This policy is one of the most robust and enduring in the planning system. The London Plan states that the protection of London’s MOL should be maintained and points out that there is a general presumption against inappropriate development on MOL, and that MOL should be given the same level of protection as the Green Belt. Policy 3D.10 states that “Essential facilities for appropriate uses will only be acceptable where they do not have an adverse impact on the openness of MOL.” 17 PPG2 states that development is inappropriate unless it is for the following purposes: Agriculture and forestry. Essential facilities for outdoor sport and recreation; for cemeteries; and for other uses of land, which preserve the openness of the Green Belt. Limited extension, alteration or replacement of existing dwellings. Limited infilling or redevelopment of major existing developed sites identified in adopted development plans which meet the criteria in Annex C of PPG2. 18 As mentioned in the site description, a portion of the site at the northern boundary with Queen Elizabeth Walk has no specific policy designation and is ‘white land’ in the Council’s UDP proposals map. The applicant has accommodated all building and hard standing within this area and no built development is proposed on the MOL. 19 The proposals involve an increase in built footprint of approximately 230 sq. m with the new building (of 535 sq. m) replacing the existing pavilion, toilet block and groundsman’s mess and re-providing them along with improved facilities.